Posted By Stephen M. Walt

If you've been paying attention -- and maybe even if you haven't -- you'll have noticed that U.S. strategic attention is shifting toward Asia. The United States has already moved the bulk of its naval deployments towards the Asia-Pacific and the Indian Ocean, Secretary of Defense Leon Panetta has stated that future defense cuts won't be felt in Asia, and the Obama administration announced the other day that it is sending 2,500 Marines to a new base in Australia. Today, we learn that Secretary of State Hillary Clinton is going to visit Myanmar, a move clearly intended to encourage the military regime there to continue its recent reform efforts and to try to wean the government from Beijing's embrace.

This trend reflects several developments: 1) the recognition that Europe faces no significant security threats and thus doesn't need U.S. protection, 2) the failures in Iraq and Afghanistan, which have gradually convinced even die-hard liberal imperialists and a few neo-conservatives that using thousands of U.S. troops to do "nation-building" in the Middle East or Central Asia is a fool's errand; 3) Asia's growing economic importance, and 4) the widespread perception -- both in Washington and in the region -- that China's power is rising and needs to be countered by the United States (and others).

But why? Even some astute commentators are puzzled why Americans should care about Asian security. Writing on his blog over at the Daily Beast, Andrew Sullivan inquires:

What on earth are we doing adding a military base in Australia to piss off China? Why shouldn't China have a sphere of influence in the Pacific? ... I see no way that putting a base in Australia somehow defends the homeland of the United States. It does nothing of the kind. It just projects global power."

In fact, there is a perfectly sound realist justification for this strategic shift, and the clearest expression can be found in George F. Kennan's book American Diplomacy. Kennan argued that there were several key centers of industrial power in the world -- Western Europe, Japan, the Soviet Union, and the United States -- and that the primary strategic objective of the United States was to keep the Soviet Union from seizing any of those centers of power that lay outside its grasp. That's what containment was really all about, even if it was distorted and misapplied by people who thought areas like Indochina were critical.

More broadly, this logic reflects the realist view that it is to U.S. advantage to keep Eurasia divided among many separate powers, and to help prevent any single power from establishing the same sort of regional hegemony that the United States has long enjoyed in the Western hemisphere. That is why the United States eventually entered World War I (to prevent a German victory), and it is why Roosevelt began preparing the nation for war in the late 1930s and entered with enthusiasm after Pearl Harbor. In each case, powerful countries were threatening to establish regional hegemony in a key area, and so the United States joined with others to prevent this.

The point isn't a moral or ethical one: it is straightforward realpolitik. As long as the United States is the only great power in the Western hemisphere, it is much safer and doesn't have to worry very much about territorial defense. If you don't think this is important, ask Poland or any other country that has lots of powerful neighbors and has suffered from frequent invasions. And as long as Eurasia is divided among many contending powers, these states naturally tend to worry mostly about each other and not about us (except when we do stupid things, like invading Iraq). Instead, many Eurasian states have been eager for U.S. protection against local threats, which is why the United States has been able to lead successful and long-lived alliances in Europe and in Asia. In fact, it is the combination of enormous security here at home and compliant allies abroad that has enabled the United States to meddle in many corners of the world, sometimes to good purpose but often not.  

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Posted By Stephen M. Walt

I've just arrived in Seoul, after a long but uneventful flight from New York. Korean Airlines did a nice job getting me here, but why do all airlines (not just KA) feel compelled to feed you a meal right after takeoff? In this case, we took off from JFK at 1:15 AM, and were immediately served a nice but wholly superfluous dinner. Even if you skip the dinner they don't dim the cabin lights for an hour or so, when you'd really rather be sleeping.

But I digress....

As I mentioned last time, I'm here for a conference on Asian security issues. I'll be talking a bit about issues on the Korean peninsula, and the fine line that South Korea has been walking in recent years as its economic ties with China have grown. But my main contribution -- such as it is -- will be talk a bit about the balance-of-power dynamics that I anticipate in East Asia in the years ahead. Here's an edited version of the key portion of my paper (disclaimer: the following reflects just my views, and not those of the conference sponsors or any of the other participants).

In general, states seek allies to balance against external threats. The level of threat, in turn, is a function of the power of potential rivals, their geographic proximity, their specific offensive capabilities, and their perceived intentions. As states grow stronger and amass greater power projection capabilities, nearby countries worry about how these capabilities will be used and to look for external support.

Ideally, states facing a rising threat would like to "pass the buck" to some other country, so that they don't have to bear the burdens of balancing against the threat. If "buck-passing" is not feasible -- usually because there is no other country to pass the buck to -- then states have little choice but to increase their own defense capabilities and form external alliances in order to preserve their autonomy and security.

In rare cases, weak or isolated states may be forced to "bandwagon" with a powerful state. Weak states can do little to affect the outcome of a great power contest and may suffer grievously in the process, so they must choose the side they believe is most likely to win. They may be willing to stand up to a stronger power if they are assured of ample allied support, but a weak state left to its own devices may have little choice but to kowtow to a larger and stronger neighbor. That is how "spheres of influence" are born.

What does this logic tell us about alliance patterns in East Asia? On the one hand, prospects for balancing ought to be fairly good. Although China has the greatest power potential in Asia, several of its neighbors are hardly "weak states." Japan has the world's third largest economy (despite a lengthy period of stagnation), a latent nuclear capability, and significant military power of its own. Despite a rapidly aging population, it would be hard to intimidate unless it were completely isolated. Vietnam has never been a pushover, India has a billion people, a rapidly growing economy, and is nuclear-capable, and states like Indonesia and Singapore possess valuable strategic real estate and (in Singapore's case) military strength disproportionate to their size. Last but not least, the Republic of Korea is now an impressive industrial power with advanced military capabilities and a number of strong alliance partners.

Furthermore, even a far more powerful China would have some difficulty projecting power against its various neighbors, because it would have to do so via naval, air, and amphibious capabilities and not via land power alone. And given the U.S. interest in preventing China from exercising regional hegemony, the potential targets of a Chinese drive for regional dominance would have a great power ally ready to back them up.

It should not surprise us, therefore, to observe that China's rise is already encouraging balancing behavior by many Asian countries. Japan, India, Indonesia, Vietnam, and South Korea have all begun significant defense modernization programs, and each of these states has taken steps to strengthen its ties with the United States. These responses, it is worth noting, are both a response to China's growing power and a reaction to its increasingly assertive regional behavior. Their desire to improve ties with the United States has found a welcome audience in Washington, which is also concerned about China's rising power and regional ambitions.

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Posted By Stephen M. Walt

I am swamped with teaching, travel and some writing deadlines the next two weeks, so my blogging output will probably be sparse. Sadly, this pindown coincides with Obama's big Asian trip, and I regret not being able to comment at length. Given that I think the United States' strategic attention ought to be shifting toward Asia, the trip is long overdue and I'm mostly glad Obama is taking it. 

But like Frank Rich, one does wonder about the timing of this particular journey. In his column yesterday, Rich complained that blowing town right after last week's "shellacking" in the midterms sent exactly the wrong message, especially when India is a country that Americans tend to associate with outsourcing and lost jobs. (There's even a new sitcom exploiting that idea.)

My concern is somewhat different. As the United States works to shore up existing alliances in Asia and to strengthen or forge some new ones, it will have to do a fair bit of hard bargaining. Even if there are strong geopolitical forces pushing states like India and the United States together, there are also lingering differences over specific policy issues (such as Afghanistan and Kashmir). Moreover, even close alliance partners will want to get others to do most of the heavy lifting, which usually means some tough negotiating. 

My fear, therefore, is that a weakened president with a weak economy will be too eager to make deals while he's on the road. Despite our current woes, Obama should not be so desperate for symbolic foreign policy "achievements" that he ends up looking or sounding like a supplicant. Our Asian partners still need us more than we need them, and the United States hardly needs to be begging them to cooperate with us. 

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Posted By Stephen M. Walt

For the past fifteen years or so, there's been a continuing debate on the likelihood of a serious rivalry between the United States and China. On one side are realists who believe that if China continues to increase its economic power, then significant security competition between the two countries is virtually inevitable. On the other side are those (mostly liberal) theorists who believe that the potential for trouble will be muted by economic interdependence and the socializing effects of China's growing participation in various international institutions. (This was Bill Clinton's rationale for getting China into the World Trade Organization, for example). And if China were to make a gradual transition to democracy, so the argument runs, then democratic peace theory will kick in and there's nothing to worry about.

On Saturday, the New York Times published an important story supporting the realist view.  It described the rapid expansion of China's naval capabilities (a classic manifestation of great power status), as well as the more ambitious new strategy that this growing capacity is designed to serve. Briefly, as China's economic power and dependence on overseas raw materials (e.g., oil) has grown, it is seeking to acquire the ability to protect its access. In practice, China's new strategy of "far sea defense" means acquiring the ability to project naval power into key ocean areas (including the Indian Ocean and Persian Gulf), while denying other naval powers the ability to operate with impunity in areas close to China.

Needless to say, this is precisely what realism would predict, and some prominent realists (e.g., my co-author John Mearsheimer) have already explained the logic behind this prediction very clearly.  And the one country that shouldn't be at all surprised is the United States, because China appears to be doing something akin to what we did during the latter part of the 19th century. To be specific: Beijing is seeking to build its economy, then expand its military capacity, achieve a position of regional dominance, and then exclude other major powers from its immediate neighborhood.

In the U.S. case, we expanded across North America ("Manifest Destiny") and other great powers to stay out of the Western hemisphere (the Monroe Doctrine). It took a long time before the United States was strong enough to enforce the latter idea, but eventually we could and we did. This position has been a huge strategic advantage ever since: not only is the United States the only great power that didn't have to worry about foreign invasion (because it had no great power rivals nearby), this position also allowed us to intervene all over the globe without having to devote much blood or treasure to defending our own shores.

If you were a Chinese strategist, wouldn't you like to be in similar position?  Ideally, you'd like to be the strongest power in East Asia and you wouldn't want any other great powers (like the United States) to have a major strategic role there. Achieving that goal is not easy, however, because China has some strong neighbors (Japan, India, Vietnam, etc.) and many Asian states already have close security ties with the United States.

So here's what I'd expect to see over the next few decades. I'd expect China to speak softly (for the most part) while it builds a bigger stick. If they are smart, they won't throw their weight around too much lest they provoke more vigorous balancing behavior by their neighbors (and the United States). I would also expect them to continuing developing military capabilities designed to make it more dangerous for the United States to operate near China, and eventually build power projection capabilities that will complicate our operations in other areas that matter (like the Persian Gulf). At the same time, look for them to forge relations in some areas that have been traditional U.S. "spheres of interest," so that the United States has to devote more time and attention to these regions too. I'd expect them to play "divide-and-conquer" closer to home as well, and try to persuade some of their neighbors to distance themselves from Washington. Lastly, Beijing would dearly love to keep the United States bogged down in places like Afghanistan, distracted by disputes over Iran's nuclear program, and stymied by the interminable Israeli-Palestinian conflict, while they exploit the anti-American sentiments that these problems exacerbate and stay focused on the bigger picture. So don't expect a lot of help from them on those fronts.

There are at least three caveats worth noting in this otherwise gloomy picture. First, as the Times article makes clear, China remains much weaker than the United States today, and it has a long way to go before it becomes a true "peer competitor." So there's no need for panic, just a timely and prudent response. The good news (such as it is) is that China's rise should make it relatively easy for the United States to stay on good terms with its current Asian allies.

Second, Chinese economic growth is likely to slow in the years ahead, especially as its population ages and as its emerging middle class demands additional social benefits. This situation will force Beijing to make some hard choices about domestic and international priorities and may limit the speed with which economic might is translated into military power and overseas presence.

Third, and most important, nothing I've said above implies that open war between the United States and China is inevitable. Nuclear deterrence is likely to keep the competition within bounds, and prudent and sensible diplomacy may be able to defuse or limit potential clashes of interest. Nonetheless, if China continues on the course laid out here, you should expect significant security competition between Washington and Beijing in the decades ahead.  To expect anything else is . . . well . . . unrealistic.

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Stephen M. Walt is the Robert and Renée Belfer professor of international relations at Harvard University.

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